城乡建设用地增减挂钩制度实施绩效分析与评价

ANALYSIS AND ASSESSMENT OF THE IMPLEMENTATION PERFORMANCE OF THE POLICY OF THE INCREASE AND DECREASE LINKINGFOR CONSTRUCTION LAND

关键词:  城乡建设用地 增减挂钩 理论内涵 绩效评价 制度改进

Key words:  construction land  land increase-and-decrease pothook policy  theoretical connotation  implementation performance assessment  system improvement

摘要:

在新型城镇化、工业化不断推进，城镇规模不断扩展与耕地资源持续减少的背景下，城乡建设用地增减挂钩制度作为一项缓解城镇建设用地紧张与耕地保护矛盾的权宜之策，正向绩效与负面问题同在。该文在分析增减挂钩制度理论内涵的基础上，结合实地调研结果，深入探讨增减挂钩实施的正向绩效与存在的问题。结果表明：增减挂钩作为一项国土管理创新制度，在促进农村土地集约利用、缓解城镇建设用地压力、统筹城乡发展与推进新型城镇化、改善人居环境等方面具有正向绩效，但在实际操作过程中存在一些问题，表现为违背农民意愿、耕地质量难保障、利益分配不公平、实际操作缺乏监督等。在此基础上，认为任何一项新制度的实施都不可避免存在问题，正视问题、弥补缺陷是增减挂钩制度改进应该坚持的方向，提出农民利益保障、城乡利益共享以及耕地生产能力保护等是今后增减挂钩制度完善中需要进一步关注和解决的重点。

Abstract:

Under the background of new type of urbanization, industrialization, urban land expanding and cultivated land decreasing, the "Urban-Construction-land-Increase and Rural-Residence-land-Decrease Connecting Pothook" as a policy to solve the contradiction between demand stress of urban construction and cultivated land protection had both the positive effects and negative problems. This policy with the purpose to better protect cultivated land resources is a compromise between the national central government and local government under the background of sharp contradiction and conflict on land resources use. Therefore, it is significant to analyze the positive influence and negative problem in improving such policy in the process of institutional implementation. Based on the analysis of the theoretical connotation for this policy and the investigation from field survey, this paper deeply explored the positive effects as well as the negative problems of this policy. The results showed that：Such policy, as a creative land management system, had showed positive influence on some aspects, such as promoting a more intensive usage of rural land, relieving the demand stress of urban construction land, coordinating the development between urban and rural, and pushing new type of urbanization and improving the living environment. However, some negative problems were emerged, such as violating rural residents' willing, threatening the cultivated land quality, unfairly distributing the benefits, lack of supervision in policy implementation, etc. Considering the inevitable problems of any new system implementation, this paper put forward some countermeasures including perfecting this policy, guaranteeing rural resident' benefits, sharing interests between urban and rural, and protecting production capability of cultivated land, and so on.